a penalty of a normal order is just a deduction of SSL$, its wholly a mechanic part of the ss program, so it's easily deducted from their SSL$ i presume. gatekeeper did take over the whole thing, but there is still management haha

as for the penalty of secret orders; in Sanctuary its explained that while the orders were created through a contract with eichi, gatekeeper was particularly the one behind of the secret orders and was in charge of the threats to ensure they were being followed. i think he was the only one capable of this, he has the extensive power to actually carry them out if he so wishes.

it's sort of the whole thing; gatekeeper has the power of essentially the mob boss and has massive amounts of power (especially in the underworld). eichi has completely nothing to do with the upholding of the secret orders and worked on the regular orders to push the units past their limits (& to help units spur into action against the ss committee)

as gatekeeper described it, the orders were to act as leashes for the idols, so that gatekeeper could do what he indented to do without any rebellion. the secret orders were to force the idols further to act towards gatekeeper's goals. they were meant to as effective as possible threats, so that the order wouldn't be disobeyed;

it's also for this reason i doubt that these secret order punishments were made with gatekeeper readying to actually have to enact. carefully selected orders and punishments + knowing that the threat of the punishment is doable by gatekeeper is enough to ensure that the idols will abide by the rules in fear of the repercussions... well, most of them. look at trickstar. they're in the jungle now... but that instance was a secret order and penalty carefully selected in hopes that hokuto WOULD defy it and get penalized.